Livestock grazing successes on public range

Historic, Archive Document

Do not assume content reflects current
scientific knowledge, policies, or practices.

Livestock Grazing
Successes on
Public Range

THE STORY OF CATTLE AND SHEEP GRAZING
on the Nation's vast Federal lands, mostly in the Western
United States, is a colorful and important part of
America's heritage. Today, 100 years after the cattle and
sheep drives and range wars that figured so prominently
in the settling of the West, livestock grazing continues as
a valid, authorized use on public range.

Livestock grazing produces food and fiber, along
with many other environmental, economic, and social
benefits. To achieve range management objectives,
Federal land managers and ranchers are working as
partners on range allotments all across the West, using
livestock grazing as a vital tool to improve riparian areas,
associated uplands, and entire watersheds.

Federal Role

In the West, the early settlers generally homesteaded
the lands with the most water and forage, while vast
areas of often remote, desolate, and arid lands remained
in public ownership. As a result, the Federal Government
still owns 724 million acres, almost one-third of the
Nation's land. Because of homesteading laws, railroad
grants, and other factors, Federal, State, and private
lands are now often intermingled, and cooperation
among landowners is vital.

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Forest Service
Bureau of Land Management

Over the years, Congress has passed a number of
laws directing the Forest Service, U.S. Department of
Agriculture, and the Bureau of Land Management (BLM),
U.S. Department of the Interior, to administer Federal
lands under a multiple-use concept, for a variety of uses.
The two agencies manage about 341 million acres of
public range. Multiple-use values on these lands include
range vegetation, soil, water, timber, minerals, wildlife
habitat, recreation, historic and prehistoric resources,
wilderness, scenery, open space, and a rural way of life.

Range conditions suffered in the early 1900's
because of drought and overgrazing, but better
management practices and regulations have vastly
improved the range. Today, range scientists, Federal
managers, and livestock producers generally agree that
public rangelands are in better condition than they have
been since the turn of the century, and they are still
working together to improve them more. In addition, the

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growing public interest in range for recreational use,
wildlife habitat, esthetics, and other values continues to
focus attention on improvement needs.

The management of livestock grazing and all other
uses of Federal lands is governed by comprehensive land
use plans, prepared by resource specialists, with public
review and comment.

Permittee Partnerships

Today, approximately 31,000 grazing permittees
work as partners with the BLM and the Forest Service in
managing cattle, sheep, horses, and goats on Federal
lands in 35 States. Most run family-owned farms or
ranches. All operate according to Federal leases or
permits that control the number of livestock and
duration of grazing. About 13 percent of these permittees
use both Forest Service and BLM lands.

Allotment management plans are worked out with
permittees to make the best use of forage and maintain
soil, water, and vegetation while meeting public demands
for other multiple-use values. These plans can be
complex, and their success relies heavily on cooperation
between permittees, Federal managers, and others.

The Public Lands Council represents the ranchers
who graze livestock on Federal lands in the Western
States. It monitors, initiates, and coordinates action on
public land issues affecting livestock permittees. The
Council works in close cooperation with other groups to
further the principles of multiple-use and long-term
conservation. It is supported by and coordinates with the
National Cattlemen's Association, the American Sheep
Industry Association, and the Association of National
Grasslands.

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Livestock Grazing for Food and Fiber

Livestock grazing provides beef, lamb, leather, wool,
and other products that are important to local, regional,
and national economies. Fully 50 percent of the Nation's
marketable lambs and 20 percent of the calves going to
feedlots are raised in the western public land states.

A big share of the livestock raised in the Western
States grazes at least part of the year on Federal land. For
example, 88 percent of the cattle produced in Idaho, 64
percent in Wyoming, and 63 percent in Arizona graze on
public range at some time. Overall, Federal lands produce
approximately 13 percent of the grazing forage in the
United States.

Livestock Grazing as a Resource
Management Tool

• Vegetation

Grazing is used to maintain or restore plant
communities. It also promotes the diversity of plant life.
For range grasses to thrive, they must be cropped to
promote vigor. Often, the lack of grazing results in
unhealthy, less dense stands that overwhelm good
grasses, wildflowers, and other plants. Livestock and
other animals break up the soil crust, increasing
rainwater penetration and scattering and trampling seeds
into the earth.

• Soil and Water

Water is precious, especially in the West. Proper
watershed management aims to capture, store, and safely
release water. By managing the timing and duration of

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livestock use, grazing helps improve grass and crop
production, control erosion, recharge aquifers, enhance
riparian conditions, and provide water for recreational,
agricultural, and other needs.

• Wildlife Habitat

Range improvements for livestock grazing can
increase wildlife numbers and improve habitat, especially
in areas with little rainfall or running water. Over the
years, Federal agencies and livestock operators have built
thousands of stockponds and waterholes, which benefit
both livestock and wildlife.

Salt distribution, brush control, grass seedings, and
predator control also benefit wildlife species. Big game
numbers are generally increasing as a result of these and
other improvements.

Intermingled private ranch and farmlands, which
contain open spaces and often boast rich riparian habitat,
also provide critical food, water, shelter, and protection
for wildlife.

Livestock Crazing for Rural Needs
• Community Stability

Livestock production is a major industry in the
West, providing jobs and income for rural communities
and generating millions of of dollars for regional
economies. The social and economic existence of many
of the small towns that dot the West depends in part on
livestock producers who operate on Federal lands.

Public land permittees are an important part of their
local tax base, providing employment and patronizing
businesses in town for feed, equipment, gasoline, and
supplies. In addition, ranchers on public range pay fees
to the Federal Government, which are shared with local

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counties for roads and schools, go to the U.S. Treasury,
or are used for range betterment projects.

• A Way of Life

Rural families, often living far from town, represent
a cherished American way of life. Wide open spaces, long
days, hard work, an affinity for the land and what it can
produce, shepherds in sheep wagons, and cowboys on
horseback are still a way of life for many; and they serve
as images of America for people throughout the world.

Federal grazing permittees are part of rural western
America and are neighbors to remote Federal lands. In
addition to managing their ranch operations, these
permittees are often on hand 24 hours a day, including
weekends, to help stop poaching, vandalism, and fires, or
to aid people in distress.

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Success Stories

There are many examples of successful Federal and
permittee partnerships that illustrate the benefits of
livestock grazing. Some involve persistent, long-term
efforts to improve vegetation in extreme climates; some
deal with intense competition for other uses; and some
are very complex, requiring negotiation and cooperation
with other landowners and interest groups. All reflect
the importance of partnerships to set goals and
ultimately improve rangeland quality.

A single grazing plan, developed in cooperation with
the 44-member Sugarloaf Grazing Association, guides
range vegetation management on 93,000 acres of the
Oglala National Grassland in the Nebraska National
Forest. Sixty-three allotments were combined into 36
grazing units, reducing the need for fencing and water
structures and resulting in a savings of $150,000. The
plan calls for continued grazing, emphasis on stream

banks and wooded draws, and measures to provide
habitat for grouse and prairie dogs. Significant
improvement of riparian conditions now provides more
cover for wildlife. Better range vegetation helps meet
public demand for recreational opportunities, such as
viewing wildlife, hunting waterfowl, or simply enjoying
the solitude of wide open spaces. The success of the plan
is nationally acclaimed, making it a benchmark example
for others to follow. For its outstanding contribution to
cooperative range management, the association received
the Forest Service Chiefs Range Award in 1989.

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Every year from June 1 to 15, cattle are purposely
grazed in the riparian area of the Pass Creek Allotment of
the Canon City BLM District in Colorado. Then, the
permittee moves the cattle in alternate years to one of
two pastures on adjacent uplands, where the abundant
forage encourages them to remain. Frequent herding and
well-placed water troughs keep the cattle on uplands
until July 15, when they move to another pasture. After
10 years of this system, with no reduction in livestock
numbers, willow growth has greatly enhanced bank
overhand and shading, vastly improving brook trout
habitat. Dense vegetation remains in the creek overflow
area to help control high water and collect sediment.

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On the Pierce Allotment of the Miles City BLM
District in Montana, a five-pasture grazing system is
used, with one pasture receiving complete rest each year.
Livestock movement through the four grazed pastures is
determined by the soil moisture, climate, plant growth,
and number of livestock. Before 1968, bare ground, soil
erosion, low plant vigor, and very few desirable plant
species were evident. Since then, the permittee has
cooperated by moving stock more often. Now, remarkable
regrowth of coarse grasses in draw bottoms has resulted
in less runoff and improved watershed. There has been a
sustained high forage yield for livestock, even during
severe drought years. Vegetation diversity and density
have increased markedly, providing excellent habitat for
antelope, sage grouse, and nongame wildlife.

The Deep Creek Allotment on the San Bernandino
National Forest in California receives heavy use by
recreationists on foot, on horseback, and in off-road
vehicles. They are attracted to a State-designated Wild
Trout Stream, which is also a water source for grazing
cattle. Hot springs and archeological sites are other
attractions, and the Pacific Crest Trail parallels a portion
of the stream. The inevitable competition for resources
required a team approach to resolve the intense conflicts.
By working together, the grazing permittee, State and
Federal agencies, and local interest groups devised a plan
that has enhanced cooperative relations and improved
cattle distribution, while protecting the stream. To make
the plan work, the Sierra Club, the Deep Creek
Flyfishermen, and the California Department of Fish and
Game joined forces to build fences. The State also
assisted and offered drilling equipment for water projects.
The permittee installed a cattleguard and drift fencing,
using Forest Service materials. The permittee also rides
the allotment regularly during the summer to herd cattle
away from Deep Creek, where fishing and other
recreational activities continue to increase.

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After a lightning fire in 1978 destroyed 2,000 acres
of mixed conifers on the Tahoe National Forest in
California, the Forest Service replanted seedlings that
soon became smothered by chaparral brush. Rather than
destroy the brush with chemicals or costly heavy
equipment, Forest Service managers worked with a local
woolgrower to introduce 800 head of sheep, which grazed
the brush but left the seedlings untouched. Today, the
forest is growing back healthy and strong, and wildlife
numbers are rebounding due to a successful partnership.

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On the Bare Allotment of the Susanville BLM
District in Nevada, a rest rotation grazing system has
been in operation since 1971. The allotment consists of
nearly 200,000 Federal acres, with 8,500 acres of private
land scattered throughout. It contains two perennial
streams and is used by 3,000 head of yearling cattle
between April 15 and October 15 each year. The
permittee is a large corporation whose managers have
worked persistently with BLM to negotiate and carry out
a combination of rest rotation and deferred grazing from
May to July. The allotment is divided into six pastures,
some receiving early and late use every year and some
grazed one year and rested the next. To make the system
work, fencing and additional water developments were
put in place. Before 1971, grazing use was season-long
every year. Grass species were heavily utilized and
displayed very poor vigor. Now, a bigger diversity of
grasses is apparent, plant vigor is significantly improved,
and stream banks show excellent recovery. All are
beneficial for livestock, wildlife, recreationists, and
overall watershed conditions.

On the Whiterock Soapstone Allotment in the
Arizona Strip BLM District in Arizona, a management
system was begun in 1967, consisting of pinyon-juniper
chaining, burning, perennial grass seeding, and a four-
pasture rest rotation grazing system. Now, sustained yield
of high-quality livestock forage, better winter forage and
habitat for mule deer and nongame wildlife, improved
watershed quality, and more pleasing and diversified
esthetic qualities are evident. Two successive permittees
have worked cooperatively with BLM over the entire
period to make the grazing system work and add water
developments, while BLM carried out land treatment
projects. In the arid Southwest climate, it is a real
accomplishment for perennial grasses to be well
maintained and thickened. The gradual increase of
bitterbrush also adds forage for deer.

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The number of elk wintering on the Wall Creek
Allotment in the Beaverhead National Forest in Montana

increased from 6 in 1935 to 1,200 in 1987. The Wall
Creek Stock Association, consisting of seven permittees,
ran cattle on the allotment. On the adjacent Wall Creek
Game Range, the Montana Department of Fish, Wildlife
and Parks became concerned that elk did not use some
areas and that forage quality had declined as older plants
developed. They began to experiment with livestock
grazing to improve range condition and forage-use
patterns. Now, the Forest Service, the stock association,
and the State of Montana have one coordinated grazing
system for all the allotment and refuge lands. With
additional fencing, pipelines, and water developments,
nine pastures have been set up at low, middle, and high
elevations. Movement of livestock is synchronized with
plant growth cycles — uphill in the spring and downhill
in the fall. Permittees now get their cattle off hayfields
earlier in the spring and off National Forest land before
fall storms, and their season is a month longer. Changing
elk-use patterns are notable, cattle are spreading out to
previously ungrazed areas, and regrowth of vegetation is
increasing.

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On the Johnny Creek Allotment of the Safford BLM
District in Arizona, a three-pasture deferred rotation
grazing system has been in operation since 1983. Even
with a slow response to vegetation management, typical
in the Southwest, a dramatic visual change has occurred.
There has been a definite increase in the density, cover,
and production of grass and brush, bringing benefits to
livestock, wildlife, and watershed. The apparent upward
trend is due to a persistent effort by BLM and successive
permittees since 1965. In progressive steps, an allotment
management plan was developed, improvements were
added, some pastures were deferred from grazing, and a
phased reduction of livestock over a 3-year period helped
build plant vigor. After 6 years, monitoring continues to
show an increase in vegetation cover.

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On the Tonasket Ranger District of the Okanogan
National Forest in Washington, tree plantations were not
performing well. Grass competition and stems bruised
from grazing were suspected causes. Trees had been
planted with little regard for grazing use in the same
areas where range grasses were sown. Permittees were
confused about where and when to graze their livestock.
As a result, range, silviculture, and ecology personnel
joined forces in 1987 to develop seeding guidelines.
Then, grazing criteria, fencing, water, salting, and
herding by a volunteer rider were agreed upon by
permittees in allotment management plans. Field trips
were held to locate plantation grazing sites and clarify
objectives. After two seasons, all participants have
learned that integrated management and the use of
livestock as a tool make sense. Now, under the watchful
eye of an experienced plantation rider, both cattle and
seedlings are thriving.

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PARTNERSHIPS with Federal grazing permittees,
are nothing new; but the effective working relationships,
the range improvements, and the multiple-use benefits of
livestock grazing have often gone unnoticed.

Changing public values and demands bring
complexity and focus attention on the need for
cooperation among all users of rangelands. Successful
partnerships between permittees, State, and Federal
managers form a strong base on which to build a positive
future for the public range.

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For More Information

Write or call the following:

USDA Forest Service
Range Management Staff
P.O. Box 96090
Washington, DC 20090-6090
(703) 235-8139

USDI Bureau of Land Management
Division of Rangeland Resources
18th and C Streets, NW
Washington, DC 20240
(202) 653-9193

The Public Lands Council

1301 Pennsylvania Avenue, NW, Suite 300

Washington, DC 20004

(202) 347-5355

Produced in partnership by:

The Forest Service, Bureau of Land Management,
and Public Lands Council

United States Department of Agricu

Forest Service

Program Aid Number 1439

September 1989